Section 29.3.1 of the handbook says "the default ruleset is already created and is named /etc/pf.conf." The example pf.conf is in /usr/share/examples/pf/pf.conf. An updated or better explained section would be beneficial to new users.
The PF chapter of the handbook was updated in April to fix that particular issue. It now states the following: "PF will not start if it cannot find its ruleset configuration file. By default, FreeBSD does not ship with a ruleset and there is no /etc/pf.conf. Example rulesets can be found in /usr/share/examples/pf/."
That should clear this up, so I'm closing this PR. Thanks for filing it.